OGI D2.1 OpenGovIntelligence framework 1st release v0 · 2019-03-29 · D2.1 OpenGovIntelligence framework – first release Page 9 of 44 Executive Summary The deliverable “OpenGovIntelligence

ThisprojecthasbeenfundedwiththesupportoftheH2020ProgrammeoftheEuropeanUnionãCopyrightbytheOpenGovIntelligenceConsortium

.

OpenGovIntelligence

FosteringInnovationandCreativityinEuropethroughPublicAdministrationModernizationtowardsSupplyingandExploiting

LinkedOpenStatisticalData

Deliverable2.1

OpenGovIntelligenceframework–firstrelease

Editor(s):RobertKrimmer,TarmoKalvet,MaarjaToots,KeeganMcBride

ResponsibleOrganisation: TUT

Version-Status: V1.0Final

Submissiondate: 31/10/2016

Disseminationlevel: PU

D2.1OpenGovIntelligenceframework–firstrelease

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DeliverablefactsheetProjectNumber: 693849

ProjectAcronym: OpenGovIntelligence

ProjectTitle:Fostering Innovation and Creativity in Europe through PublicAdministrationModernizationtowardsSupplyingandExploitingLinkedOpenStatisticalData

TitleofDeliverable: D2.1–OpenGovIntelligenceframework–firstrelease

Workpackage: WP2–Frameworkcreation

Duedateaccordingtocontract: M9(31/10/2016)

Editor(s): Robert Krimmer (TUT), Tarmo Kalvet (TUT), Keegan McBride(TUT),MaarjaToots(TUT)

Contributor(s):EvangelosKalampokis(CERTH),KonstantinosTarabanis(CERTH),Efthimios Tambouris (CERTH, Arkadiusz Stasiewicz (NUIG),MohammedWaqar(NUIG)

Reviewer(s): EleniPanopoulou

Approvedby: AllPartners

Abstract: This document summarizes the results of T2.1

(OpenGovIntelligence Framework) and proposes the firstversion of a framework for transforming the traditional publicserviceproductionprocesstoa leanandagileprocessofdata-driven service co-creation.Webelieve thatopendatadrives ashifttowardsanewconceptionofpublicserviceswhichcanbeinitiatedandco-createdbyanyone,thepublicsectoraswellascitizens and businesses. In order to support this shift, we putforward a lean and agile process for data-driven co-creation,anddefinethecoreelementsofthisnewserviceecosystem.

KeywordList: public services, public value, co-production, co-creation,innovation,linkeddata,agiledevelopment,leandevelopment


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Consortium Role Name ShortName Country

1. Coordinator CentreforResearch&Technology-Hellas CERTH Greece

2. R&Dpartner DelftUniversityofTechnology TUDelft Netherlands

3. R&Dpartner NationalUniversityofIreland,Galway NUIG Ireland

4. R&Dpartner TallinnUniversityofTechnology TUT Estonia

5. R&Dpartner ProXMLbvba ProXML Belgium

6. R&Dpartner SwirrlITLimited SWIRRL UnitedKingdom

7. PilotPartner Traffordcouncil TRAF UnitedKingdom

8. PilotPartner FlemishGovernment VLO Belgium

9. PilotPartner MinistryofInteriorandAdministrativeReconstruction MAREG Greece

10. PilotPartner MinistryofEconomicAffairsandCommunication MKM Estonia

11. PilotPartner MarineInstitute MI Ireland

12. PilotPartner PublicInstitutionEnterpriseLithuania EL Lithuania


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RevisionHistoryVersion Date Revisedby Reason

0.1 30/9/2016 TUT Firstroundoffeedbackfrompartners

0.2 15/10/2016 TUT Secondroundoffeedbackfrompartners

0.3 27/10/2016 TUT Commentsfrominternalreview

1.0 31/10/2016 TUT Finalversion

Statementoforiginality:This deliverable contains original unpublishedwork except where clearly indicated otherwise.Acknowledgement of previously publishedmaterial and of thework of others has beenmadethroughappropriatecitation,quotationorboth.


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TableofContentsDELIVERABLEFACTSHEET 2

CONSORTIUM 3

REVISIONHISTORY 4

TABLEOFCONTENTS 5

LISTOFFIGURES 6

LISTOFTABLES 7

LISTOFABBREVIATIONS 8

EXECUTIVESUMMARY 9

1 INTRODUCTION 11

1.1 SCOPE 111.2 AUDIENCE 111.3 STRUCTURE 12

2 OBJECTIVEOFTHEFRAMEWORK 13

2.1 APPROACH 132.2 AVISIONFORPUBLICSERVICESSUMMARY 14

3 OGIFRAMEWORK:KEYELEMENTS 15

3.1 CONTENT:LOSD-DRIVENPUBLICSERVICES 163.1.1 TRADITIONALPUBLICSERVICESANDRECENTDEVELOPMENTS 163.1.2 OGIAPPROACHTOPUBLICSERVICES 173.1.3 THEOGIARCHITECTURE 21

3.2 CONTEXT:ACTORSANDINFRASTRUCTURES,DRIVERSANDBARRIERS 243.2.1 TECHNOLOGICAL,LOSD,ANDDATAINFRASTRUCTURESFORDATA-DRIVENPUBLICSERVICES 253.2.2 STAKEHOLDERS 263.2.3 LEGALENVIRONMENT 273.2.4 POLICIES 283.2.5 ORGANISATIONALANDADMINISTRATIVEFACTORS 29

3.3 PROCESS:PUBLICSERVICECREATIONANDIMPLEMENTATION 303.3.1 SERVICEINNOVATIONPROCESS 313.3.2 PROCESSESFOROPENING,LINKINGANDEXPLOITINGDATA 323.3.3 PROCESSESFORFEEDINGSOCIETY’SFEEDBACK,NEEDSANDDATAINTOSERVICECREATION 343.3.4 PROCESSESFORTRANSFORMINGTRADITIONALPUBLICSERVICEMODELTOAGILECO-CREATIONMODEL 36

4 CONCLUSION 41

5 REFERENCES 42


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ListofFiguresFIGURE1.RELATIONSTOOTHERWPS...........................................................................................................................11FIGURE2.TRADITIONALPUBLICSERVICELIFECYCLE..........................................................................................................16FIGURE3.OPENGOVINTELLIGENCE:DATA-DRIVENPUBLICSERVICECO-CREATION..................................................................17FIGURE4.OGIARCHITECTURE....................................................................................................................................22FIGURE5.LEANCYCLE...............................................................................................................................................31FIGURE6.TRADITIONALWATERFALLMODEL.................................................................................................................37FIGURE7.AGILEDEVELOPMENTPROCESS.....................................................................................................................38FIGURE8.EXTRACTOFONESPRINTFROMAGILEDEVELOPMENTPROCESS............................................................................38FIGURE9.NEWAGILECO-DEVELOPMENTCYCLE............................................................................................................40


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ListofTablesTABLE1.DATA-DRIVENCO-CREATIONSTAGES,METHODSANDTOOLS...............................................................................36TABLE2.MIGRATIONFROMAGILEDEVELOPMENTTOAGILECO-DEVELOPMENT...................................................................39


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ListofAbbreviationsThefollowingtablepresentstheacronymsusedinthedeliverableinalphabeticalorder.

Abbreviation Description

API ApplicationProgrammingInterface

LOSD LinkedOpenStatisticalData

OGD OpenGovernmentData

RDF ResourceDescriptionFramework

URI UniformResourceIdentifier

WP WorkPackage


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ExecutiveSummaryThe deliverable “OpenGovIntelligence Framework – First Release” (D2.1) represents the first steptowards designing a new conceptual framework for public service co-creation driven by theexploitationoflinkedopenstatisticaldata(LOSD).Theframeworkmakesuseoftheworkconductedin WP1 by incorporating the results of the investigation of appropriate data infrastructurearchitectures and the study of the technical, organisational, legal, political and user-relatedchallenges. The framework assists the work of the OpenGovIntelligence (OGI) pilots (WP4) inopeningupandexploiting LOSD inaway that facilitates the co-creationof innovativedata-drivenpublicservices.

Thecorecontentofthisinnovationisanewvisionofpublicservices,whicharedrivenbythegoalofgeneratingpublicvalue through innovativeusesofdata,andwhichareproduced inauser-centricmanner through co-creation between public administrations, citizens and businesses. Theframeworkproposestolearnfromleanandagileservicedevelopmentmodelsthathavebecomethenormintheprivatesectorbutnotyetsointhepublicsector.Atthesametime,toaccountforthecomplexityofthepublicsectorcontext,theframeworkalsoconsidersthevarietyoffactors,actorsandprocessesthataffecttheshifttodata-drivenpublicserviceco-creation,includingstakeholders,enablersandbarriersatdifferentlevels,andsupportingstrategiesandpolicies.

TheframeworktakesaholisticviewonLOSD-drivenpublicserviceinnovationlookingatthreesidesofinnovation:firstthecontent(whatisadata-driven/LOSD-drivenpublicservice,whatroledoesco-creation play in developing this service, what are the core components of the data and servicearchitecture),thenthecontextinwhichinnovationtakesplace(whatfactorsdriveorconstrainthisinnovation,whoaretheactors)andfinallytheprocessofinnovation(whatstepsandhowshouldbetakeninordertorealizea(new)LOSD-drivenpublicservice).

Buildingonrecentdevelopmentsinfluencingthecontentofpublicservices,aframeworkisproposedfordata-drivenpublicserviceco-creation,changingthetraditionalpublicservicecreationcycleandproposingmanyradicalchanges.Inourviewpublicserviceco-creationwouldmeanthatanyactor,whetherpublicorprivate,cantaketheleadindevelopinganewservicetocreatepublicvalue,andanyactorcantakepartintheco-creationofthisservice.Indata-drivenservices,serviceco-creationlargely revolves around different stakeholders providing or using data to add value to differentphasesofservicecreation.

The context section considers the broader environment of data-driven co-creation as an integralpartof thepublic service innovationsystem.This includesdata infrastructures forLOSDanddata-drivenpublicservices,stakeholdersinvolvedinserviceco-creation,aswellascontextualdriversandbarriers. Most relevant context factors comprise open data and technology-related factors,stakeholder-relatedfactors,legalandpolicycontext,andorganisationalfactors.

Thebasic elementsof theprocess fordata-drivenpublic service creationand implementationarethreefold:(1)publicservicedevelopmentprocessbasedonaleanandagileapproach,(2)processes


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for opening data and exploiting data in public service creation and (3) co-creation process, i.e.processforfeedingusers’needs,dataandfeedbackintoservicecreation.

Thisresultsinanewagileco-creationpublicservicemodel,whereanyonecaninitiate,design,createand provide a new public service. Open data plays a catalytic role in this newmodel as it is theaccesstoopendatawhichallowsforthisnewapproachtobesuccessful.Publicservicecreationinafastandagilemannerdecreasescostsandimprovesefficiency.

Anupdatedand finalversionof the frameworkwillbeelaboratedbasedon theactualexperienceand lessons learned from the public service pilots andwill formDeliverable D2.2which is due inOctober2017.


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1 Introduction

1.1 ScopeThis document constitutes the first release of the OpenGovIntelligence framework. The aim ofDeliverableD2.1istoproposeaninitialconceptualframeworkforpublicserviceco-creationdrivenbytheexploitationoflinkedopenstatisticaldata(LOSD)1.Morespecifically,theframeworkismeanttoassisttheworkoftheOGIpilots(WP4)inopeningupandexploitingLOSDinawaythatfacilitatestheco-creationofinnovativedata-drivenpublicservices.Tothatend,thisdeliverableredefinesthetraditionalprocessesusedbypublicauthorities forsatisfying theneedsofcitizensandbusinesses,and suggests ways for adapting existing innovation strategies and policies to the real needs ofsociety. This will be done by describing the data-driven public service innovation in terms of itscontent,contextandprocess.

D2.1offersan initialdescriptionoftheLOSD-drivenpublicserviceco-creationprocessatagenerallevel.TheframeworkmakesuseoftheworkconductedinWP1by incorporating theresultsoftheinvestigation of appropriate data infrastructure architectures and the study of the technical,organisational,legal,politicalanduser-relatedchallengesthataffecttheprocessofopendata-drivenco-creation of public services. While D2.1 only constitutes a preliminary sketch of the OGIframework,thefinalversionoftheframeworkwillbesubstantiallyelaboratedbasedontheactualexperienceandlessonslearnedfromthepilots.ThefinalframeworkwillbepublishedasdeliverableD2.2attheendofthesecondprojectyear.

Figure1.RelationstootherWPs

1.2 AudienceThe primary audience for this document is the OGI consortium, in particular the organisationsresponsibleforthepilotprojects,andtheEuropeanCommission(EC).Thedocumentmightalsobe

1ThoughthisframeworkwasbuiltwithLOSDservicecreationinmind,itisalsoasuitableframeworkforanyotherdata-drivenpublicservicecreationingeneral.


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interestingtopublicandprivateorganisationsoutsidetheprojectconsortiumandmembersofthegeneralpublicwhoareinterestedindata-drivenpublicserviceco-creation.

1.3 StructureThe deliverable consists of threemain parts. Chapter 2 lists the objectives of this document anddescribestheoverallapproachtotheframeworkcreation.Chapter3describestheOGIframeworkand its components, outlining the content, context and process dimensions of data-driven publicserviceco-creation.Morespecifically,Chapter3isdividedintothreemainparts,whereSection3.1defines the core concepts of the framework; Section 3.2 describes the context that affects theinnovation content and process, including data infrastructure architectures, stakeholders, andinnovation drivers and barriers that emanate from the broader environment; and Section 3.3proposesaprocessforleanandagiledata-drivenpublicserviceco-creation.Finally,Chapter4drawssomeinitialconclusionsandsuggeststhenextstepsfortheframeworkdevelopment.


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2 ObjectiveoftheframeworkTheobjectiveoftheframeworkistoproposeauser-centricLOSDinnovationecosystembasedonaholisticapproachtodata-drivenpublicservice innovation.Theframeworkdescribestheprocesses,policies,strategies,anddatainfrastructurearchitecturesthatspecifyauser-centricLOSDinnovationecosystem and help orchestrate the collaboration of society and public administration in thedevelopment and implementation of data-driven public services. This is done with the aim topropose general guidelines for public administrations, citizens and businesses for opening up andexploitingLOSDinawaythataddressestherelevantchallengesandfacilitatestheco-productionofinnovative data-driven services through the direct participation of citizens and businesses. Morespecifically,theframeworkaimsto:

• specifyimprovedbusinessprocessesforfeedingsociety’sinput(needs,data,feedback)anddatareuseintoservicedelivery(i.e.facilitatingtheco-productionofservices);

• definestrategiesandpoliciestosupporttheinvolvementofsocietyinthedesignanddeliveryofdata-drivenpublicservicesandopeningpublicsectordata;

• proposeadatainfrastructurearchitecturethatwillenablestakeholderstocollaboratetowardstheproductionofinnovativedata-drivenpublicservicesbyexploitingLinkedOpenDatatechnologiesandstatisticaldatasets.

In order to comprehensively describe this LOSD-driven public service innovation ecosystem, theframeworkoutlinesanumberofcomponentsthatarepartofthisecosystem,includingprocessesforopeningupdata;processesto inputsociety’sneeds,dataandfeedback;strategiesandpoliciesforinnovation;datainfrastructurearchitecturesforLOSD;andcontextualdriversandbarriers.

2.1 ApproachTheambitionoftheOGIinnovationframeworkistoproposeanalmostradicalshiftinthewaypublicservicesarecreated.The frameworkthereforegoesbeyondtraditionalprocesses thatareusedbypublic authorities to satisfy the needs of citizens and businesses, and aims to redefine theseprocessestoallowforagenuinelyuser-ledanddata-driveninnovation.TheframeworkbuildsontheBusiness Process Reengineering (BPR) approach in rethinking the process of public serviceproduction to facilitate the co-creation of data-driven and user-driven services. The frameworkviewspublic servicecreationasan innovationprocessand in this regardalsobuildson innovationtheories,lookingatinnovationstrategiesandthevariousdrivers(e.g.technology,users)thatcanactas the source of this innovation. As a core innovation strategy, the framework proposes to learnfromleanandagileservicedevelopmentmodelsthathavebecomethenormintheprivatesectorbutnot yet so in thepublic sector.At the same time, toaccount for the complexityof thepublicsectorcontext,theframeworkalsoconsidersthevarietyoffactors,actorsandprocessesthataffectthe shift todata-drivenpublic service co-creation, including stakeholders,enablersandbarriersatdifferentlevels,andsupportingstrategiesandpolicies.


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2.2 AvisionforpublicservicessummaryIn 2013 the EU released a report titled “A vision for public services” in which the ideas of opengovernmentandco-createdpublic services remain thecore focus throughout the report. Someofthemainpointsandclaimsofthereportcanbesummarizedasfollows:

• “Opengovernmentempowersuserstodirectlyparticipateintheirownservicedesign,creationorselection.Itleadstomoreuserfriendly–personalised,pro-activeandlocation-based–services.”

• “Openparticipationandopenengagementallowlegitimateactorstoengageintheactivitiesofgovernmentinordertoenhancepublicvalue”:

• “Opendecisionscanempoweruserstoparticipateinpolicy-making,whichcaneventuallybeembeddedwithinwidergovernancechangesacrossallpublicsectoractivities,processesandstructures”

• “Opendataandinformationleadtomoretransparency,accountabilityaswellastrustinadministrations“

• Therearefourmaindriversofopengovernment:citizen-drivenissues,technology-drivenissues,economic-costdrivenissues,andpublicpolicytrends.Allfourofthesedrivershelptopromote“greaterinteractionbetweeninstitutions,citizens,andpublicandprivateorganizations”

What canbe seen is that the termsparticipation, engagement, empowerment, transparency, andaccountability are commonly used throughout the report and are directly associated with thebenefitsofanopengovernmentwhichusesdatatoco-createorcoproduceserviceswithitscitizens.However, theremustalsobe someunderstandingofhowthese termsshouldbeunderstood,andsomecommondefinitionsfollowhere.

• Participation–Serviceend-usersplayanactiveroleinservicecreation.• Engagement–Serviceusersorthosewhowishforanewservicetobecreatedare

interactingwiththosewhowillprovidetheservice.• Empowerment–Havingtheabilityandtheincentivetoparticipateinthepoliticalprocess

(EuropeanCommission,2013:Avisionforpublicservices)• Transparency–Serviceusersareabletobeinvolvedinmostaspectsoftheservicecreation

process,andunderstandhowtheserviceisbeingcreated.• Accountability–Theserviceproviderisworkingdirectlywithend-usersencompassingthe

obligationtoreport,explainandbeanswerableforresultingconsequences.

Ultimately the point of this section is to demonstrate that the idea behind our framework is notnecessarilynew,butitrepresentsanadvancementofideaswhichhavealreadybeenpresented.Thisframeworkisthenextstepforwardsforthefutureofpublicservicecreation.


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3 OGIframework:keyelementsTheframeworktakesaholisticviewonLOSD-drivenpublicservice innovation followingacontent-context-process (CCP)approach (seePettigrew1985,Symons1991).Thismeansweare lookingatthreesidesof innovation:firstthecontent(what isadata-driven/LOSD-drivenpublicservice,whatroledoesco-creationplayindevelopingthisservice,whatarethecorecomponentsofthedataandservice architecture), then the context in which innovation takes place (what factors drive orconstrainthisinnovation,whoaretheactors)andfinallytheprocessofinnovation(whatstepsandhowshouldbetakeninordertorealizea(new)LOSD-drivenpublicservice).

Together, these different elements constitute our proposal for a user-centric LOSD innovationecosystem, which has a twofold aim: 1) to offer a conceptual framework for understanding anddiscussing LOSD-driven public service innovation, and 2) to provide some practical guidelines forfacilitatingtheuseofLOSDandco-creationapproachesinpublicserviceproduction.

Thecorecontentofthisinnovationisanewvisionofpublicserviceswhicharedrivenbythegoalofgeneratingpublicvalue through innovativeusesofdata,andwhichareproduced inauser-centricmannerinco-creationbetweenpublicadministrations,citizensandbusinesses.Moreover,thisvisiondiffersfromthetraditionalpublicservicedevelopmentapproachesinthatitproposestostartfromreleasingtheserviceasaminimumviableproduct(MVP),i.e.atitsmostbasicandfunctionalform,anddeveloping it intoa full-fledgedservicestepbystep,withextensive input fromendusersandrelevantstakeholders.KeyconceptsoftheOGIframeworkcontentwillbediscussedinsection3.1.

Naturally,theopportunitiesandconstraintstothiskindofinnovationareheavilyinfluencedbythecontextinwhichtheinnovationprocesstakesplace.Astheco-creationofdata-drivenpublicservicesisinessenceacomplexandmulti-layeredconcept,relevantenablersandconstraintsemanatefromseveralsources,suchas1)theshapeandmaturityofexistingdatainfrastructures;2)differentkindsof drivers and barriers that are related to the context of public sector organisations and publicservice provision, and 3) the interests, perceptions, needs, capabilities and actions of thestakeholders who participate in or have the power to affect the innovation process. The contextdimensionoftheframeworkwillbeelaboratedinSection3.2ofthisdocument.

Finally, the content and context dimensions come together and are addressed through theinnovationprocess.Wewillarguethat thetraditionalmodeofpublicservicecreation isno longercompatiblewiththecurrentdemandsforuser-centric,personalizedandadaptableservicesandthetechnologicalopportunitiesofthedigitalera.Wethereforeproposeaninnovationprocessbasedonlean and agile service development methods, which put a large emphasis on stakeholderparticipation, a continuous cycle of input and feedback, and a constant improvement of servicesthroughanumberoffastiterationsandreleases.TheinnovationprocesswillbedescribedinmoredetailinSection3.3.


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3.1 Content:LOSD-drivenpublicservices

3.1.1 Traditionalpublicservicesandrecentdevelopments

A public service can be understood as a service which is offered to the general public with theexpress purpose of developing public value; public value can be understood as the total societalvalue that is sharedby all actors in societywhich is the result of all resource allocation decisions(European Commission, 2013). Traditionally, public services have been initiated, designed, andprovidedbypublicadministrators.Inthistraditionalsystempublicadministratorsactasa“broker”between society and the political system, they attempt to feed society’s needs to the relevantpoliticalbodieswho, inturn,produceandprovidetheirunderstanding(corrector incorrect)ofthecorresponding public service to meet those societal needs (Peristeras and Tarabanis, 2008). Thetraditionalpolicycycle,depictedbyFigure3, followsaplan-design-deliver-evaluatecycle. It isalsoimportanttonotethattraditionallyduringthislifecyclesocietyisonlyinvolvedasthereceiveroftheservicewhereasthepublicadministratorsaretheonesleadingandsteeringthiscycleinatop-downway.

Figure2.Traditionalpublicservicelifecycle2

Todaywearestartingtoseesomeexamplesofpublicserviceswhicharebeginningtomoveanddriftaway from this traditional top-down approach. In these recent developments public services arebeingcreatedanddeliveredduetoprivateinitiatives.Inthesenewservicesgovernmentalagenciesmay be acting as partnerswith NGOs or citizens and they are beginning or working towards theability to “co-create” a new service. In the examples of public service co-creation which arewitnessed today, private entities are involved only under the supervision of public administratorsandonlywhentheyareallowedtoactaspartnersthroughrelevantgovernmentalpoliciesbeinginplace.So, theserviceproductionprocess is stillownedanddictatedbypublicadministrationsandthetraditionalpublicservicelifecycleisnotseeingalargeorradicalshift.

2Source:Pollittetal.2006.


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Anotherrecentdevelopmentisthemovementtowardstheexploitationofdata.Inthepublicsectoreffortsarebeingmadetoexploitthelargequantityofdatawhichcurrentlyexists ingovernmentaldatabasestohelpincreasetheefficiencyofpublicserviceproduction.Publicserviceswhicharebuiltupontheexploitationofdatainthismanneratanypointinthetraditionalpublicservicelifecyclearetermed data-driven public services. As with the trend seen in the change towards co-producedpublic services, data-driven public services are not causing a large radical shift in the traditionalpublic service lifecycle and the process is still being run by public administrators in a top-downfashion.

3.1.2 OGIapproachtopublicservicesIntheprevioussectionthecurrentstateofpublicservicecreationwasdiscussed,inthissectiontheOpenGovIntelligenceapproachwillbedefined.IntheOGIapproach,acombinationofrecenttrendsis utilized and the idea of a “co-created data-driven public service” model is proposed. It isimportanttonotethatthisnewapproachisnotmerelyacombinationofthesenewrecenttrends,butitrepresentsaradicalshiftinthetraditionalmodel.

Figure3.OpenGovIntelligence:Data-drivenpublicserviceco-creation3

3.1.2.1 Publicserviceco-creation

Acollaborativeapproachtopublicserviceproductionhasemergedasanimportantwaytoinnovatepublic services which traditionally have been provided by public administrations in a top-downmanner.Theengagementofusers intheserviceproductionprocess isseenasawayof increasingefficiency and effectiveness by aligning services to users’ needs and interests. At the same time,engaging stakeholders such as citizens, businesses and researchers in the design and delivery ofpublic services is seen to foster the openness and transparency of public administration (EUeGovernmentActionPlan2016-2020).

3Source:Authors.

Co-creation

Data-driven

Traditional

publicservice

Co-createdpublicservice

Data-driven

publicservice

Co-createdData-drivenpublic

service


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This direct participation of citizens, businesses, voluntary organisations, researchers and otherstakeholdersinvariousstagesofpublicserviceproductionhasbecometermed‘co-production’.Thisconcept has its roots both in public management and servicemanagement theory and is closelyrelatedtotheideaof‘co-creation’(Osborneetal.,2016).Whilethesetwoconceptsareoftenusedinterchangeablyinliterature,theconceptofco-creationismoreoftenassociatedwithcreatingvalueforserviceusersandthepublic(see,forexample,BovairdandLoeffler,2012;Osborneetal.,2016;Voorberg et al., 2014). As public value is central to the definition of public services proposed byOpenGovIntelligence, the term co-creation rather than co-production will hereinafter be used torefertocollaborativepublicservicecreation.

Co-creationandco-productioncovera rangeofmore specific conceptswhich reflect thedifferentstagesand typesof stakeholder involvement, including co-design, co-decision, co-implementation,co-evaluation, etc. (Pollitt et al., 2006;OECD, 2011). The core idea is that stakeholders canmakevaluablecontributionsthroughoutthewholecycleofservicecreation,forexampleasexplorerswhodiscoverproblemsandneeds,asideatorsandco-initiatorsofsolutions,asco-designersofservices,orasco-implementersanddiffusersofserviceinnovations(NambisanandNambisan,2013).

However,thespreadofdigitaltechnologiesandconceptssuchasopendataandopengovernmentseemtobedrivinganongoingparadigmshifttowardsthinkingofcitizensandothernon-stateactorsnotonlyascontributorstopublicservicesinitiatedbythepublicsector,butasactorsthatcantakethe lead in providing services for the public good. According to this new thinking, ICTs and openaccess to data can facilitate a collaborative production of electronic public services by anyone,includinggovernment,citizens,NGOs,privatecompaniesandindividualcivilservants,regardlessoftherolethatthegovernmentplaysinthisprocess(EC,2013,p.6).

Oneof thechallengesandpreconditionsof thisnewcollaborativemodelofservicecreation is theneedtofundamentallyredefinethetraditionalrolesofpublicandprivateactors intheprocess.AssuggestedbyHartleyetal. (2013,p.827), collaborative innovation requirespoliticians to redefinetheirrolefrom“politicalsovereignswhohaveallthepowerandresponsibility”toonessettingtheagenda through dialogue with a number of relevant actors, and it requires public managers toredefine their role from being experts-technocrats to “meta-governors” who orchestratecollaborative arenas that involve a rangeof innovators. At the same time, private companies andvoluntary organizations need to become “responsible partners in the production of innovativesolutionsforpublicvalue”ratherthanpromotersoftheirowninterests;andcitizensneedtobeseenas“co-creatorsandco-producersratherthansolelyasclients,customers,orregulatees”(ibid).

However,thiscouldalsobeseenasjustthefirststepinthefulltransformationtowardsanewkindofpublicservices.Accordingtoamoreradicalvision,thechangingrolesmaywellleadtoacompleteblurringof boundariesbetweenpoliticians, civil servants, experts, consumers, citizens, etc., in thepublicserviceproductionprocess,andeventuallyablurringoftheboundariesbetweenprivateandpublicservices(EC,2013).Therefore,publicserviceco-creationwouldmeanthatanyactor,whetherpublicorprivate,cantaketheleadindevelopinganewservicetocreatepublicvalue,andanyactorcantakepartintheco-creationofthisservice.


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3.1.2.2 Data-drivenpublicservices

AstudybyIBM(2013)revealedthatonly50percentofmanagersmadeevenhalfoftheirdecisionsbasedupondataandanalytics.Thereasonforsomanydecisionsbeingmadewithoutanalysisisthatthedataandanalytical capabilitiesare justnotavailable.Data-drivengovernment isaboutsolvingthatproblem.Inshort,adata-drivengovernment isonewhere,forallcriticaldecisions,actionableinformationisavailablewhenandwhereneeded(IBM,2015).

However,dataalonedoesnottranslatetodata-drivengovernment.Anindividualdataelementhaslittlevaluebeyonditsapplicabilitytoitscitizen,businessorothersubject.Thehighervaluecomes,notfromtheindividualdataelementsthemselves,butfromusingallthedatatoobtaininsightfuloractionable informationandhaveitavailablewhenandwhereit isneeded(IBM,2015).Byopeningupgovernmentdatatocitizens,publicinstitutionsbecomemoretransparentandaccountabletothepeople they serve. By encouraging available and shareable data, governments can help promoteinnovative,citizen-centricpublicservices(OECD,2016).Openingupgovernmentaldataalsoprovidesthe opportunity to involve innovators from inside and outside governments to create innovativewaystotacklenewandexistingproblems.Thishasthepotentialtoincreasepublicsectorefficiencyand effectiveness. Moreover, Open Government Data (OGD) can help countries improvedevelopment programmes and track progress, prevent corruption and improve aid effectiveness(UN,2016).

LinkedDatahasbeenintroducedasapromisingparadigmforopeningupdatabecauseitfacilitatesthe integrationofdatasetsacross theWeb.The termLinkedData refers todatapublishedon theWebinsuchawaythat(i)itismachinereadable,(ii)itsmeaningisexplicitlydefined,(iii)itislinkedtootherexternaldatasets,and(iv)caninturnbelinkedtofromexternaldatasets(Bizeretal.,2009).In contrast to the full-fledged Semantic Web vision, Linked Data is mainly about publishingstructured data in RDF using URIs rather than focusing on the ontological level or inferencing(Hausenblas,2009).LinkedDatarequiresthe identificationofentitieswithURIreferencesthatcanbe dereferenced over the HTTP protocol into RDF data that describes the identified entity. Inaddition LinkedData include the creationof typed links betweenURI references, so that one candiscovermoredata (Berners-Lee,2006).Thespecificationof theLinkedDataprinciples resulted intheemergenceof theWebofLinkedData,whichcurrentlycomprisesmore than1000datasets invariousdomains(Schmachtenberg,2014).

3.1.2.3 Data-drivenpublicserviceco-creation

In the context of data-driven services, service co-creation largely revolves around differentstakeholders providing or using data to add value to different phases of service creation. Forinstance,intheproblemdiscoveryandneedsidentificationphase,citizenscancontributetheirdatatonotify thegovernmentaboutproblems in theirneighbourhood suchaspotholesorgraffiti (seeTextBox1forcurrentexamplesofcitizendatacontributions).


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TextBox1:Currentexamplesofservicesusinguserprovideddata

Citizenswithmoreadvanceddataskillscanalsomineandanalyzeopendatatoexplorepatternsordiscoverproblems(NambisanamdNambisan,2013).Asasimpleexample,residentsofanareacouldscandataprovidedinwastecollectionplansandreportproblemstoimprovethecollectionscheduleor locations (Scherer et al., 2015). In the ideation and initiation phase, data can inform thedevelopmentofideasforsolutions.Intheservicedesignphase,citizenswithproperICTskillscanbeconnected to data providers to develop data mashups or apps to address problems and needs(Nambisan andNambisan, 2013). Services can be co-implementedwith citizens by having citizenscontribute user data to enhance data-based services. Finally, citizens can also be involved inmonitoringservicesthroughprovidingfeedbackandreportingdatatopointtoproblems inserviceprovision(Schereretal.,2015).

Theproposedapproachrepresentsalargeshiftinhowadata-drivenpublicservicecouldbecreated,puts a large emphasis on citizen involvement in the process, and, ultimately, represents a muchneededupgrade to thecurrentunderstandingofpublic servicecreation.Only thencan it result inmore user-friendly and effective public services, improve the quality of decision-making, promotegreatertrust inpublic institutionsandthusenhancepublicvalue(CoatsandPassmore,2008).Thisapproach, driven by opening up and sharing assets –making data, services and decisions open –enablescollaborationandincreasesbottom-up,participativeformsofservicedesign,productionanddelivery(opengovernanceframework)(EC,2013).

Havinginmindthetraditionalapproachestoservicedelivery,data-drivenpublicserviceco-creationmeansinnovationssuchasthefollowing:

CurrentExamples

FixMyStreet:FixMyStreet (www.fixmystreet.com) isanapplicationallowingcitizenstoreportstreet problems (like graffiti, fly tipping, broken paving slabs, or street lighting) to the localcouncils who are responsible for fixing them. Through the FixMyStreet application citizenspinpointthespatiallocationoftheproblemonthemap,canaddadescriptionandphoto,andupdatescanalsobepostede.g.bytheresponsiblecounciluntiltheproblemisfinallyresolved.FixMyStreetisaclassicexampleofhowcitizenscancontributetoenhancetheservicesofferedbylocalgovernment.

StreetBump:StreetBump(www.streetbump.org/)isacrowd-sourcingmobileapplicationthathelps improve the conditionof local streets.Utilizing themobilephone’saccelerometerandGPS,theStreetBumpapplicationautomaticallydetectsandrecords“bumps”ontheCitymapwhiletheuserisdriving.Ifthreeormorebumpsoccuratthesamelocation,thecitywilltheninspect the obstacle and assign it to a queue for short-term repair or record its location toassistwithlong-termrepairplanning.Thus,StreetBumpprovidesgovernmentswithreal-timeinformationtofixproblemsandplanlongterminvestments,andcitizensareeffortlesslybeingco-creatorsofanadded-valuepublicservice.


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• Any actor, even individual citizens, can be actively involved in the co-creation of publicservices;

• Public services can utilize not only governmental data but also citizen data, business dataandsocialdata;

• Thepublicservicecreationlifecyclewillbetransformed,adiscussionofthistransformationwilltakeplaceinsection3.3

• Publicservicescanbecreatedindependentlyfromthegovernmentalpolicymakingprocess;• The public service production process can be owned by any actor not just public

administrations.• Consequently, the traditional top-down public service delivery model is revised with all

actors(publicadministration,businesses,NGOs,individualcitizens,etc.)undertakinganyofthedataprovider,serviceproviderorserviceconsumerroles.

3.1.3 TheOGIarchitecture

3.1.3.1 Introduction

To support the aforementioned approach to co-created data-driven public services, theOpenGovIntelligence framework developed a proposed data infrastructure architecture for LOSDand data-driven public services. The purpose of the architecture is to enable stakeholders tocollaborate towards the production of innovative data-driven public services by exploiting LinkedOpenDatatechnologiesandstatisticaldatasets.Moreover,theOGIarchitecturewillguidethepilotpartnerimplementations,aswellastheotherfutureimplementationsoftheOGIsoftwareinotherprojects.

TheOGIarchitectureispresentedinFigure4.Itisorganisedasfollows:

• FiveArchitecturalLayers:(i)DataProvision,(ii)DataPlatform,(iii)ProcessLayer,(iv)ServiceDesign,and(v)ServiceProvision.

• Anadditionallayer,Management,thatenablescross-layersfunctionalities

• Eachlayerhasasetofcomponentsthatperformstasksspecifictothatlayer.

Moredetailsonlayers’descriptionandinteractionareprovidedinthefollowingsections.

3.1.3.2 Layersdescription

DataProvision

TheDataProvisionLayerimplementsfundamentalfunctionalitiesneededtocreatequalitativeLODandthussupporttheexecutionandscalabilityoftheServiceDesign.TheDataProvisionservicesRDFcreation,schema,codelists,vocabulariesandmetadatamanagementservicesinordertoenabletheextensibility and scalability and assure the data quality of the proposed OpenGovIntelligenceapproach.


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Figure4.OGIArchitecture


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DataPlatform

The nature of the data handled by OpenGovIntelligence (i.e. Linked Data, aggregated cubes etc.)isfragmentedsincetheyarenotstoredandcuratedinacentralpointbuttheyaredistributedto

remote repositories and usually made accessible through SPARQL endpoints. The Data PlatformLayer isresponsible for thedata storageandprovidescataloguewhichallowsauser to search foraggregatedcubesovermanydistributedrepositories(i.e.basedontheirmetadata).

ProcessLayer

TheProcessLayerallowsanenduserto interactwiththesystem.It involvesasetofexistingtoolsthatcanbeadopted/expandedto:

• createvisualizationofstatisticaldata,

• identifyandlinkcompatibledisparatedatasetsthatcouldbeprocessedtogether,

• identifycorrelationsbetweendifferentmeasuresofthecubes,

• performOLAPoperationsonlinkeddatacubes,

• performstatisticalanalysesonlinkeddatacubes.

ServiceDesign

TheServiceDesignLayer implements themain functionalitiesofferedbyOpenGovIntelligenceandenabletheco-designofdata-drivenpublicservices:

• ServiceDesign

Supports Idea Creation, Prototyping, Evaluation and Deployment of the designed servicebyprovidingsetoftoolsandtemplates.StakeholderswithproperICTskillscanbeconnectedto data sources in order to design new services (i.e. dashboards or apps) that attemptstoaddresspublicserviceneeds.

• Collaborationspace

Enablesandfacilitatesthecollaborationbetweenthestakeholdersthatparticipateintheco-design of the public services by providing collaboration environment that allowthedesignersoftheservicestobrainstorminsessions,chat,shareassetsandsoon.

ServiceProvision

TheServiceProvisionlayerimplementstheco-provisionofthepublicservicesthatwerepreviouslyco-designed in the Service Design layer. It provides services catalogue, service monitoring,evaluationandcollectionofthefeedback.


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Management

TheManagement Layer provides cross-platform functionalities (i.e. APIs) and it is responsible foroverall security.Moreover itenables configurationof theplatform, systemmonitoringandeventsloggingaswellasprovidesadministrativeprovisionstoagroupofadministrators.

3.1.3.3 Layersinteraction

TheOGI Architecture identifies five architectural layers and one support layer in order to outlinescalable,reusable,modularandextendableinfrastructureforpublishingandexploitingLinkedOpenStatisticalData.

Raw data is processed and transformed to Linked Data cubes by the Data Provision Layer. It isachieved by using conceptual models and set of components for validation that ensures outputquality.Afterthat,produceddataistransferredtotheDataPlatformLayer,whichisresponsibleforstorageandallowscubesdiscoveryintheservicedesignprocess.TheendusercaninteractwiththesystembyaccessingtheProcessLayer.Theuserisabletoprocessthedataonhe/sheisinterestandusefunctionalities and computational capabilities required to create the services, such as dataquerying,aggregations,visualizations,andsoon.Createdassets(i.e.widgets)areusedintheServiceDesign Layer, which enables stakeholders to play an active role in open data sharing and publicservice design and delivery. The Service Design Layer allows idea creation based on the availableassets, prototype it and evaluate it in a collaborative environment. The final element of thearchitecture isService Provision which enables the implementation of the designed service andprovides a set oftools for monitoring, evaluation and its management. The whole process issupported bythe Management Layer which facilitates smooth interaction between componentsacrossallotherlayersofthearchitecture.

3.2 Context:actorsandinfrastructures,driversandbarriersServicetheoryisincreasinglyfocusingontheconceptofservicesystems,understandingservicesasopensystemswheretheproductionofaserviceisa“productofacomplexseriesof,ofteniterativeinteractions, between the service user, the service organization and its managers and staff, thephysical environment of the service, other organizations and staff supporting the service process,andthebroadersocietal locusof theservice” (Radnoretal.,2014,p.406).Similarly,publicsectorinnovationande-government innovation theoriesemphasize the importanceof the technological,social,organisational,administrative,culturalandpoliticalcontextasasourceofdriversandbarrierstotechnologicalinnovationsinthepublicsector(see,forexample,Angelopoulosetal.,2010;Hartleyetal.,2013).TheOGIframeworkthusconsidersthebroaderenvironmentofdata-drivenco-creationas an integral part of the public service innovation system. This includes data infrastructures forLOSD and data-driven public services, stakeholders involved in service co-creation, as well ascontextualdriversandbarriers.Basedonthestudyofdriversandbarrierstoopendata-drivenpublic


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serviceinnovation,whichweconductedamongselectedstakeholdersinOGIpilotcountriesaspartofWP14,wecanconcludethatrelevantcontextfactorscompriseopendataandtechnology-relatedfactors,stakeholder-relatedfactors,legalandpolicycontext,andorganisationalfactors.

3.2.1 Technological,LOSD,anddatainfrastructuresfordata-drivenpublicservicesThepurposeofthissectionistooutlinetheneededopendatainfrastructureswhichwouldallowfortheco-creationofadatadrivenpublic service.AnOpenData Infrastructurecanbeunderstoodasbeing synonymous with an Open Data Portal (Zuiderwijk et al., 2013). These Open Data portalsshould allow for data to be found, opened, used, and created. There are also numerous sub-dimensions within the Open Data Infrastructure definition and understanding, these have beenoutlinedingreaterdetail insection8.2.4ofOGID1.1.OpenDataInfrastructuresshouldsupportallaspects of the Open Data lifecyclewhich is described in section 3.3.2 of this deliverable. So, anyinfrastructurewhichisinplacetosupportOpenDataprovisionmustbeabletosupportthecreationofdata, itmustbeable todisseminate thedata, thedatamustbeable tomaintained, and theremustalsobethelegalandtechnicalrequirementsinplacetoallowforallthesestepstotakeplace.The following sections of 3.2 will describe how stakeholders, legal environment, policies, andorganizationalfactorsallinfluencetheOpenDataInfrastructure.

3.2.1.1 ICTToolsforco-creation

Currently there aremany ICT tools for co-creationwhich are freely available online and allow fordevelopment or management of ideas. In this section seven different potential tools which mayassistintheco-creationofanewdata-drivenservicearepresented.Thesetoolsmaywellbeusefulforpublicserviceco-creationinthattheycanbeeasilyandquicklyadoptedbypublicauthoritiesororganizationswithoutneedinganyadditional fundingor technological capacity.The tools selectedhadtheofferedfunctionalityexaminedaswellastheirpotentialtobeutilizedindata-drivenpublicserviceco-creation.

Toolsfordevelopingideas

1. Flockdraw

Flockdraw (http://flockdraw.com) is a web application providing an online whiteboard-baseddrawing toolwhereunlimitedpeoplecancollaborativelydraw in real timeonthesamecanvas. Indrawningsectionuserscanchoosebetweendifferentcolours,shapesandtext.Besidethedrawingfeature,Flockdrawalsoofferschatfunctionality.

2. Kune,webapplication

Kune (http://kune.ourproject.org) is an open source web application focusing on real timecollaboration. With Kune users can create online group spaces for the creation of collaborative

4ThedetailsofthestudyaresummarizedinOpenGovIntelligenceDeliverable1.1


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documents, for interaction and sharingof content, and for settingup virtualmeetings.Additionalfeaturesincludepollsandmind-maps(seealsohttp://kune.ourproject.org/screenshots/).

3. Mind42

Mind42(https://mind42.com)isanonlinemindmappingapplication.Userscancreatemindmaps,meaningtheycaneasilyorganizetheirinformationinavisualway.Mind-mapsareprivatebydefaultandthereistheoptiontosharethemwithotherusers.

4. XWiki,wikisoftware

XWiki (http://www.xwiki.org/xwiki/bin/view/Main/WebHome) is a second-generationwiki. Secondgeneration wikis focus on structure and application creation like blogs, file managers, meetings,forumsandtasks.XWikicanalsobeusedasafirst-generationwikifocusingoncontentcreationwithfeaturesrelevanttopageediting,versioncontrol,accessrights,searchandexports.

Toolsformanagement

1. Freedcamp

Freedcamp(https://freedcamp.com)isawebapplicationfacilitatingcooperationandmanagement.Users can create to-do lists, tasks, events, calendars and milestones and share them amongthemselves.

2. Trello

Trello (https://trello.com) is an online application that provides unlimited boards, cards, lists andchecklists.WithTrellouserscancollaboratewithunlimitedmembersandattach filesupto10MB.Moreover,TrellocanconnectwithBox,DriveandDropbox.

3. Wiggio,onlineapplication

Wiggio(https://wiggio.com)isanonlineapplicationthathelpsuserscreateto-dolists,assigntasks,manageevents,andsharecalendars.Italsoofferspollinggroupsinrealtime,sharingfilesandhostvirtualmeetings.

3.2.2 StakeholdersThevery ideaof co-creationsuggests the involvementofmore thanonestakeholdergroup in thecreationofpublicservices.Thethreebroadgroupsoftenmentionedinthecontextofpublicserviceco-creationarepublicadministrations,citizens/citizenorganisations,andbusinesses.These in turncanconsistofvariousdifferentsub-groupswithdifferentneeds,interests,skillsandpositions–andhence different roles – in the co-creation process. The OpenGovIntelligence model sees nolimitationstotherolethatanyofthesegroupscantakeindata-drivenco-creation:allofthemcanactas initiatorsofnewdata-drivenservices,oraspartnersandco-creatorsof theseservices.This,however, not only presumes the existence of supporting infrastructures but also a favourableculturalenvironmentfordatasharingandcross-sectoralcollaboration.


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Stakeholders’interests,values,perceptionsandcapabilitieshavebeenfoundtoplayacrucialroleinco-creation. As often suggested in literature and confirmed in the OGI stakeholder survey,stakeholderscanbeboththekeydriveraswellasamajorbarriertoopendata-drivenpublicserviceco-creation.Forexample,divergingstakeholderagendasandviewscanbeanimportantbarriertoe-government innovation unless careful attention is paid to reconciling the needs of differentstakeholders from the outset (Angelopoulos et al., 2010, Rochet et al., 2012). This is particularlyimportant for collaborativeandparticipatorydemocratic innovations (see, forexample,CouncilofEurope2009).TheOGIsurveyofdriversandbarriersfoundthatsomeofthebiggestbarrierstoopendata-driveninnovationcomefromstakeholders’perceptionsandattitudes.Sinceopendataisoftenperceivedaslackingtangiblebenefitswhilecostingalot,thereisresistanceinmanyorganisationstomaking their data open. Similarly, the benefits of co-creation are not well understood, whichmanifests in the administrators’ lack of openness to the idea of co-creation. This is furthercomplicatedbyawidespreadlackofnecessaryskillstoopenupdataandmakeuseofopendataininnovativewaysamongallstakeholdergroups.

On the other hand, stakeholders’ beliefs, priorities, preferences, skills and actions can act as apowerfuldriverofopendatainnovation–infactthesewereamongthemostfrequentlymentionedintheOGIsurvey.Themajordriversofopendatainnovationseemtobe:

• Amorewidespreadperceptionofopendataasasourceofvalueintermsofimprovedservices,betterinformation,transparency,participation,andeconomicopportunities.Amongothermeans,thisvaluecanbedemonstratedandcommunicatedbyprototypinganddisseminatingconcreteapplicationstoshowcaseopendatasolutions,waysofinteractivedatavisualisation,etc.

• Visionaryandopen-data-enthusiasticpolicy-makersandadministratorswhoactasinnovationchampions.Here,theroleofseniormanagersandpoliticalleadersisparticularlyimportanttoachievebuy-inamonglowerranksofcivilservants;

• Onthecitizens’side,vocalgrassrootsgroupswhoexpressdemandforopendataareanimportantforce,aswellasindividualinnovatorswhoareoftendrivenbypersonalfrustrationwiththelowqualityofexistingservicesanduseopendatatodevelopnewservicesthatbettermeetuserneeds;

• Capacity-buildingtodevelopthenecessaryskills,knowledgeandabilitiesofdifferentstakeholdergroupstoworkwithopendata.Thiscouldbedonebyofferingspecializedtrainingprogramsonopendataanddigitalskills,publishingconcretehandbooksthatexplainopendata,andsharingbestpractices.

3.2.3 Legalenvironment

OpendatainnovationisalsoconstrainedbylegalissuesaroundIntellectualPropertyRights,personaldata protection, security, data sharing and choosing appropriate licences. For example, personaldataprotectionregulationssometimespreventthegovernmentfromreleasingdatasetsthatwouldotherwisebeinterestingforserviceinnovators.Althoughthisproblemcangenerallybeovercomebydataaggregationintolargerstatisticaldatasets,thisisnotalwaysasolutionifthedataconcernsvery


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smallgroupsofpeople.Accordingtothestakeholdersurvey,privacy-relatedconcerns infactseemtohavetwolayers:oneisconnectedtotheactualregulationsandtheotherwiththewaytheyareperceivedand interpretedbypublic sectororganisations.Themisunderstandings that somepublicofficials might have about privacy and identity-related information might also impel them to beoverly cautious about publishing any data rather than figuring out ways to publish data withoutprivacyviolationrisks.Similarly, limitedawarenessaboutexistingdata licencescanbeabarrier tomakingdataopenandreusable.

Also,thetraditionalwaterfallsoftwaredevelopmentmethodappliedlargelytodayisfullysupportedbythecurrentacquisitionparadigmofgovernmentcontracting(Mergel,2016).Currentacquisitionactivities are generally geared towards efficiency in public money spending as a first priority.However, there is a growing awareness among policy-makers around the world that publicprocurement has a potential to drive and spur innovation, referred to as public procurement ofinnovation,andthisisneededfortheacquisitionandsustainabilityofLOSDbasedand/orco-createdpublicservices.

Variousbarriersinfluencepublicprocurementofinnovation.Thecontemporarypublicprocurementculture is deeply rooted into the short-term efficiency idea, which is further reinforced by theprevalentaccountabilitymechanismsemployedinpublicsector.Forcivilservantsthereislittletobegainedfromsuccessfullyimplementingariskyproject,whereasfailuretodosoalmostalwaysleadstodirectorindirectpenalties.Also,lowpublicmanagementcapacityisanissue,relatedtodesigningandusingproperperformancecriteria,buildingandnurturingeffectivecooperationandinteractionmechanismsbetweenprocurementstakeholders,etc.(seeLemberetal.,2015formoredetails).

Therefore,inordertosupportopendatainnovation,governmentsareencouragedto:

• Reviewdatalicensingandcopyrightregulationstoensuretheircompatibilitywithopendatagoals,publicinterestandnewbusinessmodels,andencourageawidespreadadoptionoffreesoftwarelicenceswithminimalrestrictionsandmaximumcompatibility;

• Increasetheawarenessofpublicofficialsofpersonaldataprotectionregulationsandwaystopublishdatawithoutcompromisingprivacy;

• Introduceanational-levellegalobligationforgovernmentinstitutionstomakepublicsectordataopenbydefault.Accordingtothesurvey,thiscouldexertamuch-neededpressureandmotivationforpublicorganisationstopublishopendata;

• Qualifypublicgrantsubmissionsandpublictendersagainstopendataorobligeopendatapublicationaspartofpublicprocurementandfundingschemes.

3.2.4 PoliciesBasedontheresultsofWP1,theexistingpolicyframeworkattheEUlevelandthesixpilotcountriesismostlynotabarrierassuch.However,policiesareseentoholdaconsiderablepotentialtofurtherdriveopendatainnovation–apotentialwhichstillneedstobeunlocked.Forexample,althoughthesurveyedstakeholdersweregenerallysatisfiedwiththeEuropeanopendatapolicy,inparticulartheDirectiveonthere-useofpublicsectorinformation(PSIDirective),theysuggestedthatmorecould


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be done to enforce the directive at the Member State level, and potentially even update thedirectivetoforcestatestomakeallgovernmentinformationpublicfreeofcharge.Anothercriticaldriverisseeninaholisticapproachtoopendatapolicieswhichwouldregardopendataaspartofabroader open government policy, and would involve a combination of legal, policy and technicalmeasures. According to the suggestions of the survey respondents, the followingpolicymeasurescouldbehelpfulinfosteringopendata-driveninnovationandco-creation:

• StrengtheningandenforcingthePSIDirective;• Introductionof“openbydefault”policies;• Datastandardisationandopenstandardspolicies,whichshouldbetackledatacross-border

ratherthannationallevel;• Implementationofthe“APIfirst”policytoincreasethereliabilityofdataandfacilitatethe

reuseofopengovernmentdatabyexternalstakeholders;• Benchmarkswithothercountries;• Acomprehensive,systematicandstrategicpoliticalapproachtoopendataandopen

government,whichincludes:o makingopendatapartofabroaderopennessandtransparencypolicy;o makingsurethispolicyiswellintegratedwiththecurrentstateoftheartandfuture

trendsintechnology;o combiningregulatoryandpolicymeasureswithsupportivetechnicalinfrastructures

(e.g.opendataportals),hands-onguidelines,disseminationofcasestudiesandbestpractices,andfundingschemestosupportthepublicationofopendata.

• Supportandfundingtodifferentformsofcollaboration(cross-border,cross-sectoral,inter-organisational)toenablelearning,facilitatetheadoptionofcommonmethodologies,andenhancecooperationbetweendataproducersanddatausers.

3.2.5 Organisationalandadministrativefactors

Theorganisationalcontextofpublicsectororganisationsisafrequentlycitedfactorine-governmentinnovationandpublicsectorinnovationmorebroadly.Forexample,rigidorganisationalstructures,organisationalinertia,organisationalsilos,lackofcollaboration,lackofincentivesforinnovation,riskavoidance, lacking innovation capabilities, lack of innovation leadership, resource constraints areoftenseenasbarrierstoinnovation(see,forexampleDeVriesetal.,2016;EuropeanCommission,2013; Nasi et al., 2015). At the same time, a favourable organisational context can also driveinnovation – some of the important drivers are ICT literacy, slack resources, active innovationleadership, strongpolitical support, inter-institutional collaboration, etc. (Nasi et al., 2015). In thecaseofcollaborativeinnovations,additionalfactorsbecomeimportant,suchastheopennessoftheorganisationalculture towardscitizen input (FreemanandQuirke,2013)asopposed topoliticians’andadministrators’reluctancetolosestatusandcontrol(BovairdandLoeffler,2012).Therefore,theprospects forasuccessfulco-creationofpublicservicesdependsbothonorganizationalstructuresandroutinesaswellasorganizationalculture.


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The OGI stakeholder survey highlighted the importance of the organizational context: the mainbarriers to open data-driven co-creation are seen in incompatible organisational routines andprocesses;lackoffeedbackloopsbetweengovernmentandcitizens;lackofopennesstotheideaofopendataandopenprocesses,lackoftrustandinnovativeculture;lackofpoliticalpriority;lackofadequate resources. In addition to that, open data innovation is also hindered by existingproprietarybusinessmodelsandthefactthatmanypublicorganisationsmakepartoftheirrevenuebysellingkeydata.Basedonthesurvey,thekeydriversforopendata-drivenco-creationthatwouldbeneededattheorganisationallevelinclude:

• Remodellingtheexistingprocessesforpublicserviceproductiontointegrateco-creation;• Sufficientfundingforpublishingopendata;• Developmentofnewbusinessmodelsthatmakeuseofopendata;• Supportiveorganizationalcultureandinnovationleadership;• Capablechangemanagement;• Capacity-buildingindigitalskills,opendata,datamanagementandco-creation;• Creationofinnovationteamsaroundinternalchange-agents,whoshouldbegivensufficient

freedomtoexperimentwithopendataininnovativeways.

3.3 Process:publicservicecreationandimplementationHavingdefinedtheideaofauser-centricdata-drivenpublicserviceaswellasthecontext inwhichtheseservicesareusuallycreated,wewillnowoutlinethebasicelementsoftheprocessthatmakeitpossible to collaboratively create these services. This process canbe seenas consistingof severalsub-processes,whichwillbedescribedinthefollowingsections:

1. Apublicservicedevelopmentprocessbasedonaleanandagileapproach.Oneaspectofthenewlyproposedmethodologyisborrowedfromtheprivatesector,itistheideaoftheminimumviableproduct,orMVP.Forthepurposeofourmethodologywewillassumethatproductcanbeunderstoodasanewpublicservice.So,whatwehaveisthisideaofaminimumviablepublicservice.TheideabehindtheMVPistogetaserviceatitsmostbasicandfunctionalformoutandreleased.OncetheMVPhasbeendevelopedandreleaseditallowsforthe“leancycle”tobegin(Figure5).Theleancycleofbuild-measure-learnallowsforfastfeedbackintotheservicefromcitizens.So,aserviceisproposedanddevelopedandreleasedinitsmostbasicform,thenasthisMVPisuseditispossibletorapidlygetanunderstandingofhowcitizensarerespondingtoitandadaptandchangeatarapidpace.Ultimately,thismeansthatthepublicservicewillbecheapertoprovideanditwillbemoreintunewiththecitizens’wantsandneeds.

2. Processesforopeningdataandexploitingdatainpublicservicecreation.3. Co-creation,i.e.processforfeedingusers’needs,dataandfeedbackintoservicecreation.


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Figure5.LeanCycle5

3.3.1 ServiceinnovationprocessThe service innovation strategy and process will borrow ideas from both lean and agiledevelopment,andwillalsoincorporatesomeaspectsofNewPublicServicemethodology(Denhardtand Denhardt 2000). This new approachwill allow for new public services tomove towards theobjectiveofusing“citizenanduserengagementasasourceofinnovation;andtheimplementationofneworsignificantlyimprovedwaysofprovidingpublicgoodsandservices”(EC,2013).Inordertobetterunderstandhowthisnewservice innovationprocesswill function,how it is innovative,andwhyitrepresentsachangeinthecurrentframeworkforserviceprovisionitisimportanttoprovideabasicdefinitionforthemainqualitiesoftheproposedframework.

Agile development – Agile development focuses on being able to adapt quickly to changes byfollowing an ‘agile’ approach based onmultiple sprintsmade up of fourmain stages: plan, build,test,release(Becketal.,2001,HighsmithandCockburn,2001).

LeanStartupdevelopment–Theideaofa leanstartupwasproposedbyEricRies inhisbook“TheLeanStartup”,wewillborrowoneprinciplefromthisbookwhichistheideaofthe“build-measure-learn” cycle. It is stated that the build-measure-learn cycle is based on the idea that “thefundamental activityofa startup is to turn ideas intoproducts,measurehowcustomers respond,andthenlearnwhethertopivotorpersevere”(Ries,2011).ForthepurposeoftheOGIframework,wewill substitute the term startup for service creators, and customerswill be substituted by thewordcitizensorserviceusers.So,whatwehavethen isthe ideathatthe“fundamentalactivityof

5Source:https://leanstack.com/lean-analytics-the-one-metric-that-matters-and-other-provocations/


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servicecreatorsprovidingapublicserviceistoturnideasintoproducts,measurehowserviceusersrespond,andthenlearnwhethertopivotorpersevere”.

New Public Service – “A set of ideas about the role of public administration in the governancesystemthatplacescitizensatthecenter”(BernhardtandBernhardt,2000).Thesevenideasincludedwithinthe“NewPublicService”are:

• Serveratherthansteer• Thepublicinterestistheaim,nottheby-product• Thinkstrategically,actdemocratically• Servecitizens,notcustomers• Accountabilityisn’tsimple• Valuepeople,notjustproductivity• Valuecitizenshipandpublicserviceaboveentrepreneurship

When examining the aforementioned definitions, it is important to pick up the commonalitiesbetweenthesethreedifferentideas:focusontheserviceuser,beagile,developquickly,listentotheserviceuser,andbeabletoadapttochangingneedsandwantsquickly.Inpreviousserviceprovisionapproaches therewas an overarching top-down ideology, that is to say the governmentwas theservice creatorand thecitizenwas the serviceuser.With thisnewapproach thegovernmentandcitizens are viewed as partners in public service creation, and there should be a focus oncollaborationbetweenthetwoparties(Vigoda,2002).Thisnewcollaborationisuniqueinthat it isnowproposedthatcitizenscanbebothserviceuserandservicecreator,thisisnolongeratopdownapproach:citizens,NGOs, localgovernments,andallotherorganizationscanbebothserviceusersandservicecreators.Thisrepresentsaradicalshift inpreviousthoughtsonservice innovationandcreation thus allowing for a better targeted public service which has been more efficientlydeveloped.

Theserviceinnovationprocesscanbesummarizedwiththefollowingpoints:

• Thegovernmentandcitizensshouldbepartnersatallstagesfromideationtocreationtoimplementationofthenewdata-drivenpublicservice.

• Thereshouldbeaninitialreleaseofthepublicserviceatanearlystage,oran‘MVP’ofthepublicservice,whichallowsfortheleancycletobestartedasquicklyaspossible.

• Thepublicserviceshouldbeabletorespondtouserfeedbackfromtheinitiallaunch.• End-userinputshouldbesoughtandutilizedatallstagesofthepublicservicecreation.

3.3.2 Processesforopening,linkingandexploitingdataThissectionwillfocusontheOGIdepictionoftheLinkedOpenStatisticalDataLifecycle,describedinmoredetailinOGID1.1.TheLOSDlifecyclehasfourmainparts:datacreation,datapublishing,datausage,anddatacuration(seeFigure6).Eachoneofthesepartsisfurthermadeupofsmallersteps(4stepseachinthecaseofdatacreation,datapublishing,anddatausage).


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Figure6.LinkedOpenDataLifecycle6

Briefly,theLOSDlifecycleismadeupofthefollowingsteps:

• DataCollection:Datafrommultiplesourcesiscollected;datacanbestructuredorunstructured.

• DataStorage:Datacollectedinpreviousstepisstoredindatabases.• DataSelection:Usingthedatawhichhasbeencollectedandstored,ananalysisisconducted

anddatawhichisabletobepublishedisselected.• StatisticalDataCreation:Statisticalinformationontheselecteddataisgeneratedatthis

stage.• HarmonizingData:Dataisharmonizedviainternationalstandards.• CleaningData:Dataischeckedforerrorsandlimitations.• CreatingMetadata:Metadataiscreatedforthedata.• OpeningupData:DataispublishedviaadumporaccessisprovidedviaanAPI.• LinkingData:Datasetswhichhavebeenopenedandreleasedmaybelinkedtogether.• DataDiscovery:Atthisstage,usersdiscoverthedatasetsandtakeadvantage/utilizethem.• DataExploration:Datacanbebrowsedorexploredbasedonsimplecharacteristics.• DataExploitation:Morein-depthwaytoconsumedata,assumesthatotherdatasetswillbe

usedandcomplexanalysiswillbecarriedout.• DataCuration:Inthisstagethedataismaintainedsothatitcontinuestobeaccessibleto

thosewhowishtoutilizeit.

Webelievethatthislifecycleprovidesanaccuratedescriptionfortheoverallprocessofhowdataiscreated, discovered, published, and exploited. When talking about the exploitation of data, it isimportanttonotethatnormallythisrequiresadvancedtoolsanddataanalyticsabilities.So,todeal6Source:OpenGovIntelligenceDeliverable1.1.


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with this user friendlyGUI’s (Graphical User Interface)may be created so that thosewho do nothavemuchexperiencewithdataarebetterabletoworkandunderstandthepresenteddata.

3.3.3 Processesforfeedingsociety’sfeedback,needsanddataintoservicecreationSociety’s feedback isacoreaspectof thedatadrivenpublicservice.This feedbackcomes inmanyforms,butultimatelyhasonegoalwhichistoimprovetheofferedservice.Feedbackcanbereceivedinregardstothelinkedopenstatisticaldatawhichisbeingoffered,theexploitationmethodsoftheLOSD, and about thenew services themselves.When looking at obtaining feedback from theendusers,many differentmethods could be utilized. For this sectionwewill focus on themost likelyfeedback forms foradata-drivenpublic servicewhichare feedbackmechanismsbuiltdirectly intothepublicservice,socialmedia,anduserworkshops.

When creating a new public service, it is important to make sure that the proper feedbackmechanismsare inplace.Onewaytodothis isbyallowingpotentialserviceusersadirectwaytobecomeinvolvedwiththepublicservice,thatistosay,thattheyshouldbeabletofeelthattheyareabletoparticipateinthecreationordesignofthepublicservice.Therearedifferentwaystobuildthisfeedbackmechanismintoapublicservice.Oneoftheeasiestwaystodothisisbyallowinguserstoproveinputintotheservice.Foradata-drivenpublicserviceusersshouldbeabletoeitheruploadtheirowndata,suggestchangestodatasets,orbeabletodirectlyparticipateindatacreationforaservice(thiscouldbedoneviaaphoneapp,sensors,etc.).Ultimately,thegoalhereistomakesurethatserviceusershavesomedirectroleinthecreation/designofaserviceandthattheyareabletocontinually provide feedback into the service which is valuable, listened to, and utilized. In thefollowing paragraphswewill also discuss one semi-passiveway for feedback generation and oneactiveway.A successfulprocess for feeding feedback into thenewpublic servicewill likelyutilizesomecombinationoftheproposedfeedbackmechanisms.

Socialmediaallowsforfeedbacktobereceivedalmostinstantaneously.Therearemanywayswhichsocialmedia feedback could be implemented into the newly proposed data-driven public servicecreationmethodology,butonewaywhichstandsoutintermsofeffectivenessisdatamining.Oneaspectofdataminingwhichmaybeuseful isthe ideaofopinionminingorsentimentanalysis.So,when there is an increase in usage of a newly created service, their tweets, Facebook posts, etc.could be followed and notifications could be received anytime a post related to the new publicservice was created. These posts could be automatically understood as positive or negative orneutral, fromthere further investigationcouldprovide insight intowhatwasgood,whatwasbad,etc.Inessence,socialmediaallowsforalargeamountofuserstoproviderealtimefeedbackaboutapublicservice.Failingtotakeadvantageofthis feedbackmechanismwouldbewastedpotential,thus it iscritical thatadata-drivenpublicservicetakesfulladvantageofalldatawhich isavailableabouttheendusersofourservicesothatitcanprovideasgreatasocietalbenefitaspossible.

Anothercriticalaspectof the feedbackprocess is the inclusionofend-users in thecreationof thenewdata-drivenpublic service.Oneof thebestways todo this is throughuser-workshops.Theseuserworkshopsarebasedonagiledevelopment,andtheoverallstructureshouldbeasfollows:

• Introduction(describingtheaimofthesession)


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• Silentideation(silentindividualideation)• Groupdiscussion(groupdiscussionofsilentlygeneratedideas)

This structuremay be repeated asmany times as needed for asmany sessions which should beincludedattheworkshop.Userworkshopsstructuredinthiswayallowforallindividualstoprovidevaluableinputintotheoveralldesignandstructureofthenewpublicservice.Theseuserworkshopsshouldalsoberepeatedthroughoutthelifecycleofthenewdata-drivenpublicservice.Intermsofoutcomes,theseworkshopsshouldbeabletoproducealistofissueswiththenewservice,alistofpotentialsolutions,basicthoughtsontheusabilityandfunctionalityoftheservice,userstories,alistof user personas of individualswho could use the service, and any other informationwhichmaycomeoutof theworkshoporganically.The informationwhichcomesoutof theseuserworkshopswillallowforthegovernmentandcitizenstoworktogetherandgetabetterunderstandingofwhatthe service is, how it should function, and what the end goal should be. It truly is a necessaryfeedbackstepifthenewdata-drivenpublicserviceistoplaceanemphasisonco-creation.

Building upon and extending the differentiation of co-creation in Voorberg et.al. (2014) Table 1shows and explains how feedback canmaterialize, throughwhatmethods/tools, and discusses atwhatstageintheleancycletheymaybeused/howtheyfitintotheideaof“co-creation”.


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Co-creationtype Participantcontribution Methods ICTtoolsandmethodstocollect

Co-initiation Problem&needsidentification

Opendataminingbycitizens Dataanalysisbyskilledindividuals

• Rstatisticalanalysis• TwitteR(Rlibraryforopinion

miningandsentimentanalysis)

• WekaIdeagenerationforwaystosolveproblems(informedbydata)

UserworkshopsCommunitymeetingsSocialMediaAnalysis

Co-design Inputtoservicedesign Userworkshops Focusgroups SurveysUXandUItesting

• Survey• Questionnaire

Co-implementation

Uploadinguserdata Userareaforuploadingdatainservice

• Webstatistic(access,downloads,uploads,etc.)

• Survey• Questionnaire• Rstatisticalanalysis• TwitteR(Rlibraryforopinion


• Weka

Suggestingchangestodatasets

Feedbackchannelsintegratedinservice

Datacreationforaservice

Phoneapps,sensors

Co-evaluation Providingfeedbacktoservicequality,usefulness,etc.

Socialmediaminingforsentimentanalysis Feedbackformsintegratedintoservice

• Rstatisticalanalysis• TwitteR(Rlibraryforopinion


• WekaReporting data onserviceoperation

Phoneapps

Table1.Data-drivenCo-CreationStages,MethodsandTools7

3.3.4 Processes for transforming traditional public service model to agile co-creationmodel

The purpose of this section is to discuss the overall transformation process for public servicecreation.Itwillstartwithaninitialdiscussionofthecurrentprocess,continueontoadescriptionoftheagileprocess,willthenpresentideasaboutthenewdata-drivenpublicserviceco-creationcycle,

7Source:Authors.


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andwillendwithadiscussionofwhythistransformationprocessisimportantandwhatbenefitsitoffersovertraditionalmodels.

In Figure 7 the traditional top-down or waterfall model is displayed. In the traditional waterfallmodel there is a fairly linear approach to development where the project requirements are alloutlinedatthebeginningandthedevelopmenthappens late intotheprojectdesigncycle.Forthepurposeoftheframework,whatisimportanttounderstandhereisthatinthistraditionalmodelthepublic administrators are steering and controlling the whole process with citizen input beingoccasionallysought,itisnotanecessityeither.So,whatwehaveinthetraditionalmodelisaservicewhichisslow,noteasilyadaptable,andonethatmaynothaveadequatewaysatreceivingfeedbackfromtheserviceuser.

Figure6.TraditionalWaterfallModel8

A model which is currently advocated for in many software development projects is the “agiledevelopment”approach.Figure8demonstratesthetraditionalagiledevelopmentapproach.Inthisfigurethereare4mainpartsrepresented:discover,design,developtest.Whatisimportanttotakefromthisimageisthatinagiledevelopmenttheprocessisiterative.Inagiledevelopmentthegoalistocomeupwithsomerequirementsorneed,designthesolutionforthis,testthesolution,releaseit,andthenstartthecycleagain.Duetoagiledevelopments’iterativeandfastpacedapproachitisabletohandlefeedbackfromusersandanyunexpectedchangeswhicharemadetotheproject.

8Source:Authors.


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Figure7.AgileDevelopmentProcess9

Figure9isanexampleonecycle,orsprint,whichiscontainedwithintheoverallagiledevelopmentprocess. As previouslymentioned one cycle contains four steps of discover, design, develop, andtest.Intheagilesprintwhatshouldbenotedisthatinputissoughtfromalldifferentsources.Inthetraditionalmodel thepublicadministratorsorgovernmentaresteeringandcontrolling theservicecreationandmayseekinputfromcitizensoccasionally, intheagilemodelallpartiesrelatedtothepublicserviceshouldhavetheabilitytoprovideinput.

Figure8.ExtractofonesprintfromAgileDevelopmentProcess10

Thenewprocess forpublic service creationwhich isbeingproposedwithin thisOGI framework isshown in Figure 10. However, it is important to also understand how the switch from agiledevelopment to agile co-development is being made. For this purpose, Table 2 presents adescription of the different agile phases, the phases of co-creation, the stakeholders, and theirmotivation. The takeaway here is that for a new data-driven public service the initiators and theprovidersareaskingthesamequestionsandtheywillinteractwitheachotherinthesameway.So,if onewants a new service or onewants to provide a new service it startswith this question of

9Source:Authors.10Source:Authors.


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“What needs are not currently beingmet”? This question corresponds directly with the discoverstageofagiledevelopment,and itmapsdirectlytothe ideaofco-initiation. Inordertomergetheagile developmentmodelwith the co-creationmodel proposed by (Pollitt et al., 2006), questionswere developed for each stage of agile development which also encompassed the idea of thecorrespondingco-creationphase.

Discover Design Develop Test

ServiceInitiator/ServiceProvider Co-Initiation Co-Design Co-Implementation Co-Evaluation

ServiceInitiator/ServiceProviderMotivation

Whatneedsarenotcurrentlybeingmet?

Howcanwemeetthisneed?

IsourneedforXcurrentlybeing

metorimproved?

NowthatwehavestartedtomeetourneedfortX,howcan

wekeepoursolutionuptodate?

Methodforinteraction

Userworkshops,OpenDatamining,

Communitymeetings,Social

media

Userworkshops,UXandUItesting,FocusGroups,

Surveys

Datamining,serviceusageanalysis,userworkshops,surveys,

Userareaforuploadingdatatoservice,service

integratedfeedbackchannels,toolsforusergeneratedservicedata

Table2.MigrationfromAgileDevelopmenttoAgileCo-Development11

Figure10representsanewagileco-creationpublicservicemodel.Inthismodelanyonecaninitiate,design,createanewpublicserviceandanyonecanprovidesaidpublicservice.This isahuge leapfromthetraditionalpublicservicedesignmodels.Itisalsoimportanttonotethatopendataplaysacatalyticroleinthisnewmodelasitistheaccesstoopendatawhichallowsforthisnewapproachtobe successful. Similar to agile development, this new proposed model would be organized intomultipleiterativesprintsofco-production.

11Source:Authors.


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Figure9.NewAgileCo-DevelopmentCycle12

Thenewlyproposedmodelallowsforapublicservicetobecreatedinafastandagilemannerwhichdecreases costs and improves efficiency. It also allows for input from parties at every stage ofdevelopmentsothattheservicecan,truly,beco-produced.Withthisnewmodelandtheabilitytoaccessopendata,anypersonororganizationhastheabilitytobecometheinitiatororproviderofanewdata-drivenpublicservice.

12Source:Authors.


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4 ConclusionThe increasing availability and accessibility of datasets along with tools for data analytics andexploitation have become a valuable driver of public service innovation. On the one hand, theprovision of data through user-friendly interfaces can constitute the core of new services; on theother, the widespread availability of open data has the potential to ‘democratize’ public serviceproductionbymakingitpossibleforvirtuallyanyonetoinitiatenewservicesandengageintheco-creationofdata-drivenservices.

The exploitation of this potential, however, requires a fundamental rethinking of the concept ofpublicservices, theways inwhichtheseservicesareproduced,andtherolesofdifferentactors intheprocess.Thispaperendorses theemergingvisionofpublic servicesas servicescreatedbyanyactor (citizens, businesses, or the public sector) with the purpose of generating public value,regardlessoftherolethepublicadministrationintheprovisionoftheseservices.Furthermore,wearguethatthetraditionaltop-downwaterfall-likemethodofpublicserviceproductionnolongerfitsthis changing vision and the increasing demand for needs-based, customized and responsiveservices.We thereforeproposeanewmodel forpublic service creationwhichbuildson leanandagileproductionmethodsandallowstocreatenewservices faster,moreefficientlyand inamorecollaborativewaythroughaseriesofshortiterationsandconstantimprovement.

As such, thismodel ishighlypromisingwith respect toenablinga shift towardsuser-centricdata-drivenpublicservices.However,itisimportanttolookatservicedevelopmentaspartofabroaderecosystem and acknowledge the existing drivers and barriers to this innovation at the level oforganisations,legislation,stakeholders,policiesandtechnicalinfrastructures.Itisonlybyaddressingsome key barriers such as outdated intellectual property and data protection legislation, orincompatible processes in public sector organisations, that this new vision of data-driven serviceinnovationcanrealize.

As thenext step, the applicability of this frameworkwill be tested in the sixOpenGovIntelligencepilotprojects.Theoutputsofthepilottestswillserveasanimportantlearningprocessandinformthedevelopmentofa secondand final versionof the framework.More specifically, thepilotswilldemonstratewhetherandhowthisframeworkcanbeputtopracticeinsixverydifferentcontexts;what real-life barriersmight hinder the implementationof an agile and lean service developmentmethod;whatproblemsandchallengesmightcomeupwithregardtousing linkedopenstatisticaldataforservicecreation;andfinally,whatchallengesemergewithregardtoopeningpublicservicecreation processes up to the general public and making co-creation an integral part of servicedevelopment.


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OGI D2.1 OpenGovIntelligence framework 1st release v0 · 2019-03-29 · D2.1 OpenGovIntelligence framework – first release Page 9 of 44 Executive Summary The deliverable “OpenGovIntelligence